Goodell spoke during a pre-NFL draft event in New York City, and his comments were provided in a transcript released by the NFL.

Goodell said he's had numerous discussions with perspective owners and public officials regarding the Bills, whose future is uncertain after the team's owner and founder Ralph Wilson died in March.

The Bills will be put up for sale, opening the possibility of a new owner eventually relocating the franchise. The commissioner shed light on what the NFL's approach will be in determining the next Bills owner and the franchise's status in western New York.

Goodell said there would potentially be two votes taken by NFL owners. The first would approve sale of the team to the prospective owner selected by Wilson's estate. If necessary, a separate vote would be required to approve any relocation of the franchise.

"We are making those two separate votes," Goodell said. "The intention is that whoever buys the team will make the team work in western New York."

The Bills are essentially locked into playing at Ralph Wilson Stadium through the end of the 2019 season under the terms of the lease the franchise reached with the state and Erie County in December 2012.

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The Bills would incur a $400 million penalty by broaching the prospect of moving during the lease's term. There is a one-time exception that would allow the Bills to break the lease for just under $28.4 million in 2020.

Goodell became the first to publicly suggest the Bills will require a new stadium. Previously, Bills officials and state and local leaders have called that a possibility, while not ruling out the potential of making more renovations to Ralph Wilson Stadium, which opened in 1973.

Gov. Andrew Cuomo has already recognized the likelihood of the Bills needing a new facility. On Tuesday, he state hired AECOM, a California-based architectural and design firm, to identify three or four sites across the region that could serve as the team's new home.

AECOM officials will begin touring sites on Monday and have until July 11 to produce a feasibility study to be distributed to prospective ownership groups. Sites could potentially include Buffalo as well as Niagara Falls.

The study will include estimates on the facility's revenue-generating potential through seats, suites, sponsorship, parking and concessions.

The firm also will study the potential for developing real estate around the potential stadium sites, and consider the benefits and costs of building a stadium with a retractable roof.

It has not been determined how the cost of a new stadium would be divided.

Officials believe having the framework of a new stadium plan in place would help represent the region's commitment to keeping the Bills to a new owner and the NFL.

The state has stepped up its timetable because of the possibility a new owner could be selected by Wilson's estate by the end of July and presented for approval at league meetings in October.